n Congress; the
power of members to recommend appointments, and the influences
exerted in their favor by the appointees, often determine the
question of their continuance in office. Consequently, there is a
great temptation to use patronage in exchange for votes. The use of
money directly in _bribery_ is difficult of detection, but other
favors and privileges of money value are no less effective in the
purchase of the votes of those members who are so unscrupulous as
to be open to such influences.

Debate in Congress.--It is now apparent that many other things
besides the arguments used in debate determine which bills shall pass
and which shall fail. In the House the time for debate is strictly
limited, on account of the amount of business. The chairman of the
committee reporting a bill generally has one hour in which to urge the
passage of his measure; for a portion of the time he may _yield the
floor_ to other members, both friends and opponents of the bill. Of
course, much more than one hour is given to debate on important bills.
Many of the speeches which are printed in the _Congressional Record_
have not been delivered; but they are intended for circulation among the
constituents of representatives, and for use as campaign documents. Many
of the speeches that are actually delivered receive scant attention; the
lack of interest in them is made evident by the noise and confusion
that very often prevail during sessions of the House.

Senate Procedure.--In the Senate debate is not limited. Senators
are expected to regard each other's rights with respect to the amount of
time and attention they may demand; yet a bill may be "talked to death"
in the Senate. As a result, the Senate is less business-like in its
procedure than the House, and some means of checking unlimited
discussion have often been proposed for it.

Conference Committees.--A bill which has passed one house must be
sent to the other. Here it is introduced and goes through the stages
above described. If one house amends a bill which has already passed the
other, it must be returned for re-passage to the house where it
originated. This is a frequent cause of conflict between the two houses,
and each tries to insist on its rights.

When such a dispute cannot be easily adjusted, a _conference committee_
must be appointed. This is composed of members from each house, and they
endeavor to arrange a compromise which w